It cannot be supposed that they should intend, had they a
power so to do, to give to any one, or more, an absolute
arbitrary power over their persons and estates, and put a force
into the magistrate's hand to execute his unlimited will
arbitrarily upon them. This were to put themselves into a worse
condition than the state of nature, wherein they had a liberty to
defend their right against the injuries of others, and were upon
equal terms of force to maintain it, whether invaded by a single
man, or many in combination. Whereas by supposing they have
given up themselves to the absolute arbitrary power and will of a
legislator, they have disarmed themselves, and armed him, to make
a prey of them when he pleases; he being in a much worse
condition, who is exposed to the arbitrary power of one man, who
has the command of 100,000, than he that is exposed to the
arbitrary power of 100,000 single men; no body being secure, that
his will, who has such a command, is better than that of other
men, though his force be 100,000 times stronger. And therefore,
whatever form the common-wealth is under, the ruling power ought
to govern by declared and received laws, and not by extemporary
dictates and undetermined resolutions: for then mankind will be
in a far worse condition than in the state of nature, if they
shall have armed one, or a few men with the joint power of a
multitude, to force them to obey at pleasure the exorbitant and
unlimited decrees of their sudden thoughts, or unrestrained, and
till that moment unknown wills, without having any measures set
down which may guide and justify their actions: for all the power
the government has, being only for the good of the society, as it
ought not to be arbitrary and at pleasure, so it ought to be
exercised by established and promulgated laws; that both the
people may know their duty, and be safe and secure within the
limits of the law; and the rulers too kept within their bounds,
and not be tempted, by the power they have in their hands, to
employ it to such purposes, and by such measures, as they would
not have known, and own not willingly.
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